Request for Comments on Proposed Policy Statement on Archaeology and Heritage Tourism, 33389-33393 [E8-13004]
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Federal Register / Vol. 73, No. 114 / Thursday, June 12, 2008 / Notices
Expected Benefits
Though this project was conceived to
promote best preservation practices
within the military, its broad
undertaking-based approach may
benefit any federal agency that
possesses historic properties needing
rehabilitation.
As explained above, standard
treatments were established as a way to
assist federal agencies in their
completion of Section 106
consultations. Standard treatments are
to be used when an agency gets to the
point of assessing adverse effects under
36 CFR 800.5, or when negotiating a
Section 106 agreement under 36 CFR
800.6 or 800.14(b). This quicker path to
‘‘no adverse effect’’ or a Section 106
agreement can greatly reduce the
consultation workload of federal
agencies that intend to rehabilitate their
historic properties in accordance with
the Secretary Standards.
DOD has been working with ACHP to
define a program alternative whereby a
federal agency may use a standard
treatment in order to exempt the
consideration of the effects of that
specific treatment from Section 106
review. However, the use of such a
program alternative is not the subject of
this notice and public comment.
Text of the Proposed Standard
Treatment on Historic Masonry
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As stated above, the appendices to the
proposed standard treatment document
comprise the actual substance of each of
the eighteen standard treatments and
the two implementation guidance
documents. Due to their volume, they
will not be copied into this notice.
However, they can be accessed on the
Internet at https://www.achp.gov/
masonryst.html. Those without access
to the Internet can contact Hector Abreu
´
Cintron at 202–606–8517, or by e-mail
at habreu@achp.gov to arrange an
alternate method of access to the
documents.
The following is the text of the
standard treatment document, minus
the appendices:
Advisory Council on Historic Preservation
Standard Treatment for Historic Exterior
Masonry
I. Establishment and Authority: This
Standard Treatment for Historic Masonry
was established by the Advisory Council
on Historic Preservation on (date of
establishment) pursuant to 36 CFR
800.14(d).
A standard treatment is a program
alternative that assists Federal agencies in
meeting their obligations to comply with
Section 106 of the National Historic
Preservation Act, 16 U.S.C. 470f, and its
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implementing regulations, 36 CFR part 800
(Section 106)
II. Applicability to All Federal Agencies: This
Standard Treatment may be used by any
Federal agency.
III. Date of Effect: The Standard Treatment
will go into effect on (date of
establishment)
IV. Standard Treatment:
(A) As Basis for No Adverse Effect
Determination: Work that follows the
relevant standard treatments appended
to this document, in conformance with
the implementation guidance documents
numbered 01060.01 and 01091.01 in
those appendices, does not constitute an
adverse effect under 36 CFR 800.5(a).
Accordingly, a Federal agency that will
follow the standard treatments in such a
manner may find ‘‘no adverse effects’’ for
those aspects of its undertaking that deal
with the specific works covered by the
standard treatments. Except under
circumstances where quantifiable scientific
or qualitative historic data indicates that an
alternate treatment procedure is merited, the
ACHP will not object to that aspect of such
a finding of ‘‘no adverse effects.’’
However, the agency must still examine
whether other aspects of its undertaking may
adversely affect historic properties and, if so,
continue the Section 106 process
accordingly.
(B) As Basis for Section 106 Agreement: A
Federal agency may also utilize the
standard treatments and implementing
guidance appended to this document as
a starting point for negotiating that part
of a Section 106 agreement (e.g.,
Memoranda of Agreement or
Programmatic Agreements) that deals
with the works covered by those
standard treatments.
Except under unusual circumstances, the
ACHP will not object to provisions on a
Section 106 agreement that are consistent
with the appended standard treatments.
V. Amendment: The ACHP may amend this
Standard Treatment after following the
same consultative process required for
its initial establishment under 36 CFR
800.14(d). Such an amendment will go
into effect once published in the Federal
Register.
VI. Termination: The ACHP may terminate
this Standard Treatment by publication
of a notice in the Federal Register 30
days before the termination takes effect.
VII. Historic Properties in Tribal Lands and
Historic Properties of Significance to
Indian tribes and Native Hawaiian
Organizations: This Standard Treatment
does not apply in connection with effects
to historic properties that are located on
tribal lands and/or that are of religious
and cultural significance to Indian tribes
or Native Hawaiian organizations.
VIII. Definitions: The definitions found at 36
CFR part 800 apply to the terms used in
this Standard Treatment.
IX. Appendices: [Appendices will be
attached. Their full text can be accessed
as explained in the notice above.]
Authority: 36 OFR 800.14(d).
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Dated: June 4, 2008.
John N. Fowler,
Executive Director.
[FR Doc. E8–13007 Filed 6–11–08; 8:45 am]
BILLING CODE 4310–K6–M
ADVISORY COUNCIL ON HISTORIC
PRESERVATION
Request for Comments on Proposed
Policy Statement on Archaeology and
Heritage Tourism
Advisory Council on Historic
Preservation.
ACTION: Notice of Intent To Adopt a
Policy Statement on Archaeology and
Heritage Tourism.
AGENCY:
SUMMARY: In 2003 the Chairman of the
Advisory Council on Historic
Preservation (ACHP) appointed a Task
Force on Archaeology to identify
archaeological issues that merited the
ACHP’s attention. One issue identified
was the need to better encourage
responsible use of archaeological
resources for public benefit, including
education programs and heritage
tourism. The Task Force has developed
a draft policy statement, along with
guidance, entitled ‘‘Using
Archaeological Resources for Public
Benefit, including Education and
Heritage Tourism,’’ and now seeks
public comments on it.
DATES: Submit comments on or before
July 14, 2008.
ADDRESSES: Address all comments
concerning this draft policy statement
and guidance to Dr. Tom McCulloch,
Office of Federal Agency Programs,
Advisory Council on Historic
Preservation, 1100 Pennsylvania
Avenue, NW., Suite 803, Washington,
DC 20004. Fax (202) 606–8647. You may
submit electronic comments to:
archaeology@achp.gov. Please note that
all comments submitted to the ACHP
will become part of the public record.
FOR FURTHER INFORMATION CONTACT: Dr.
Tom McCulloch, (202) 606–8554,
archaeology@achp.gov.
The
Advisory Council on Historic
Preservation (ACHP) is an independent
federal agency that promotes the
preservation, enhancement, and
productive use of our nation’s historic
resources, and advises the President and
Congress on national historic
preservation policy.
The current draft policy statement
and guidance is the product of a Task
Force subcommittee that included
ACHP members and their expert staff,
Federal agency officials knowledgeable
SUPPLEMENTARY INFORMATION:
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Federal Register / Vol. 73, No. 114 / Thursday, June 12, 2008 / Notices
about historic preservation and tourism,
the ACHP’s tribal member, the ACHP’s
Native American Advisory Group,
representatives of the National
Conference of State Historic
Preservation Officers, and the National
Association of Tribal Historic
Preservation Officers. Formal discussion
sessions were held at the national
meetings of the Society for Historical
Archaeology in Williamsburg, Virginia,
and the Society for American
Archaeology in Austin, Texas. The
subcommittee determined that a policy
statement with some accompanying
guidance was the appropriate vehicle to
promulgate the ACHP’s position on the
need for a more prominent role for
archaeology in heritage tourism and
education. The Subcommittee met four
times to develop an initial draft of these
documents, which were then presented
to the full Archaeology Task Force
where they were refined into the present
document.
At its most recent meeting on April
18, 2008, the Task Force members
agreed to place before the full ACHP
membership this latest draft of the
policy for their review and comment. A
full copy of the draft can be found at the
end of this notice. The ACHP
membership also agreed with the Task
Force’s plans to circulate the draft
policy and guidance for public comment
in this Federal Register notice, and post
it on the ACHP’s Web site. After review
of comments received, the Chair of the
Task Force plans to bring the policy and
guidance before the full ACHP
membership for adoption at its August
15, 2008 quarterly meeting.
Several particular issues were
explored in developing this statement
and guidance, that we would
specifically appreciate comments on,
including:
(1) Use of the policy statement. The
policy is intended to help ACHP staff,
federal agencies, State and Tribal
Historic Preservation Officers, local
communities with archaeological assets
(like Preserve America and Main Street
communities), tourism industry
professionals, and others when
determining whether and how to use
archaeology to help instill a greater
appreciation and understanding of the
American past, and when making
decisions about incorporating
archaeology and archaeological
resources into heritage tourism projects
and programs.
(2) Balancing use of archaeological
properties in tourism and education
with privacy concerns. This issue is
addressed in Principle 2 of the draft
policy statement. Guidance for this
principle says that many archaeological
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sites are valued by cultural and lineal
descendants for religious or cultural
reasons and would prefer not to open
them to the general public. The
guidance goes on to say that religious or
cultural values associated with the
archaeological resources should be
considered in making decisions about
appropriate public visitation.
(3) Consultation with others in
making use decisions. Decisions about
appropriate use should be made in
consultation with those who ascribe
such significance to the archaeological
resources, in addition to those with an
interest in public education, heritage
tourism, and resource conservation.
(4) Management and sustainability
needs. Use of archaeological resources
in heritage tourism and education
requires adequate personnel and
financial resources for success.
Guidance for this principle focuses on
the need to consider a wide range of
issues that include resource protection,
access, current and long-term threats,
and the requirement for site
maintenance and sustainability.
Text of the Draft Policy Statement and
Guidance
The following is the text of the draft
policy statement and guidance:
ACHP Policy Statement: Using
Archaeological Resources for Public
Benefit, Including Education and
Heritage Tourism
Introduction
The National Historic Preservation
Act of 1966 (NHPA) aims among other
things ‘‘to insure future generations a
genuine opportunity to appreciate and
enjoy the rich heritage of our Nation.’’
16 U.S.C. 470(b)(5). The NHPA goes on
to state that ‘‘it shall be the policy of the
Federal Government, in cooperation
with other nations and in partnership
with the States, local governments,
Indian tribes, and private organizations
and individuals to—(1) use measures,
including financial and technical
assistance, to foster conditions under
which our modern society and our
prehistoric and historic resources can
exist in productive harmony and fulfill
the social, economic, and other
requirements of present and future
generations.’’ 16 U.S.C. 470–1.
Executive Order 13287, ‘‘Preserve
America,’’ signed by President George
W. Bush on March 3, 2003, builds on
this mandate, stating that ‘‘it is the
policy of the Federal Government to
provide leadership in preserving
America’s heritage by actively
advancing the protection, enhancement,
and contemporary use of the historic
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properties owned by the Federal
Government, and by promoting
intergovernmental cooperation and
partnerships for the preservation and
use of historic properties.’’ Executive
Order 13287 recognizes the importance
of preserving ‘‘the unique cultural
heritage of communities and of the
Nation, and to realize the economic
benefit that these properties can
provide.’’
Archaeological Resources and Historic
Properties
‘‘Archaeological resources’’ include
archaeological properties (sites),
material collections derived from field
investigation and study of those sites,
and related records and syntheses of
those studies. ‘‘Archaeological
properties’’ are defined by the National
Park Service as ‘‘the place or places
where the remnants of a past culture
survive in a physical context that allows
for the interpretation of these remains.’’
Archaeological properties may also be
‘‘historic properties,’’ that is, properties
listed, or eligible for listing, in the
National Register of Historic Places.
Archaeological resources have
significant value and benefits as heritage
assets, and can contribute to public
understanding and appreciation of the
past through heritage education
programs and heritage tourism
initiatives at a local, statewide, or
regional level. As demonstrated in a
public opinion poll conducted in 2000
by Harris Interactive for the Society for
American Archaeology, archaeological
resources and the archaeological
research process hold particular
fascination and interest for many
members of the public. The Harris Poll
found that most Americans ‘‘support the
goals and practice of archaeology,
endorse laws protecting archaeological
sites and artifacts, and think
archaeology is important to today’s
society.’’ Many of these same
individuals are likely to be active
heritage tourists.
Heritage Tourism and Archaeology
Heritage tourism is defined in
Executive Order 13287 as ‘‘the business
and practice of attracting and
accommodating visitors to a place or
area based especially on the unique or
special aspects of that locale’s history,
landscape, and culture.’’ The National
Trust for Historic Preservation further
defines cultural heritage tourism as
‘‘travel to experience the places and
activities that authentically represent
the stories and people of the past and
present’’ (Getting Started: How to
Succeed in Heritage Tourism, National
Trust for Historic Preservation, 1993).
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The practice of archaeology, public
appreciation of the stories about the past
to which archaeology can contribute,
and public access to interpreted sites
and archaeological collections have long
been recognized internationally as
subjects worthy of tourism
development. A number of popular
tourism destinations in the United
States, such as Mesa Verde National
Park or Jamestown Island, incorporate
archaeological resources. At other
locations, engaging visitors to actively
participate in archaeological field work
under controlled and limited conditions
may also be appropriate. Such
‘‘participatory archaeology’’ can offer an
excellent opportunity for educating a
segment of the public about archaeology
and resource stewardship.
At the same time, it is also clear that
legitimate issues arise about tourism
development and the visitor experience
and their potential impact on the
archaeological record. Such issues may
include the adequacy of resource
conservation, sustainability, and
management; the appropriateness of
public access and associated site
improvements at a particular location;
the cultural sensitivity of some remains
as well as their interpretation; and the
economic viability of open sites and
necessary visitor facilities. Careful
consideration of these issues may
conclude that it is appropriate to use
archaeological collections and results of
archaeological research in heritage
tourism, but not the actual, physical,
‘‘site.’’ In such cases, other means of
interpreting and presenting the results
of archaeological study should be
considered, including electronic
‘‘virtual’’ tours, exhibits, film, offsite
interpretation, and other methods.
Management and economic issues
also need to be assessed in reaching
decisions about the viability and
sustainability of archaeological heritage
tourism. Just because an archaeological
site is opened and presented to the
public does not mean it will be visited
or appreciated. A sound and realistic
business plan is necessary. Issues to
consider here include the potential
market and audience for this form of
tourism; whether site development is an
appropriate use of the resources; the
impact of a site’s location and
ownership on public access; immediate
and long-term financial and
management needs; and the ability and
willingness of responsible parties to
prepare and implement necessary
development, interpretive, and public
use plans.
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Principles
The following principles and
accompanying guidance have been
adopted by the Advisory Council on
Historic Preservation (ACHP) to assist
ACHP staff, federal agency decisionmakers, and other parties when
determining whether and how to use
archaeology to help instill a greater
appreciation and understanding of the
American past, and when making
decisions about incorporating
archaeology and archaeological
resources into heritage tourism projects
and programs.
These principles and guidance will
also be useful for State and Tribal
Historic Preservation Officers, local
communities with archaeological assets
(such as Preserve America and Main
Street communities), tourism industry
professionals, and businesses and notfor-profit organizations involved in
heritage development projects.
—The public interest in archaeological
resources and their interpretation
makes them an excellent focus for
heritage tourism and related public
education efforts.
—While some archaeological properties,
or groups of properties in an area,
may be appropriate for public
education programs or heritage
tourism development, others may not.
—Decisions about when, where, and
how to interpret and present
archaeological properties and
resources to the public should be
made in consultation with a broad
range of parties with an interest in
public education, heritage tourism,
resource conservation, and the
particular place that would be
interpreted.
—Responsible public interpretation for
education or tourism includes current
scholarship. Facts and findings from
the archaeological work should be
integrated into the presented story to
help bring the past and its
investigation to life for the general
public.
—Archaeological properties or
resources that are made part of public
education efforts and/or heritage
tourism projects are supportable and
sustainable through professional,
adequately funded, and welldeveloped and executed management
programs.
Guidance
—The public interest in archaeological
resources and their interpretation
makes them an excellent focus for
heritage tourism and related public
education efforts.
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The Society for American
Archaeology’s public opinion poll has
demonstrated the strong public interest
in and appreciation for archaeological
knowledge, archaeological properties
and the materials they contain, and the
archaeological discovery process.
There is often even greater interest in
the stories and methods of
interpretation about people, places, and
events of the past that are reconstructed
as a result of archaeological research
and interpretation.
The science of archaeology can foster
a greater understanding of and
appreciation for peoples and cultures of
the past as well as the traditions, events
and places valued by living peoples
today.
Tourism and public education
programs can assist in mutual
understanding and respect between
peoples and societies, and between the
present and the past.
—While some archaeological properties,
or groups of properties in an area,
may be appropriate for public
education programs or heritage
tourism development, others may not.
In making decisions about whether a
given archaeological resource’s
preservation and use is the best way to
tell this story to the public, the physical
manifestations of the archaeological
resources, and how their physical
features lend themselves to being
viewed and understood by members of
the public, needs to be carefully
considered.
Ascribed values associated with the
archaeological resources, including their
value to cultural and lineal descendants
as well as particular segments of the
interested public, may either support or
be in conflict with public access. The
pros and cons of public uses need to be
considered in this light.
Archaeological properties and related
collections are fragile and nonrenewable; many are valued by cultural
and lineal descendants of the site’s
creators for religious or cultural reasons,
and would prefer not to open them up
to the general public. Some resources
may be physically inaccessible to the
public, such as those located on a
military reservation or tribal lands. If
present, and when properly studied,
archaeological elements of a standing
historic property or the location of a
past historic event can add considerably
to the interpretation and appreciation of
the property.
Among other factors, the presence or
absence of fragile or culturally sensitive
remains, as well as the ability to manage
visitation, should be taken into account
in reaching decisions about appropriate
uses for public education or tourism.
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Where public access is inappropriate
or difficult, or cannot be effectively
managed, alternative means of
presenting archaeological properties and
information to the public may be
desirable. Such alternatives may include
offsite interpretation and exhibits,
‘‘virtual’’ tours, and other methods.
—Decisions about when, where, and
how to interpret and present
archaeological properties and
resources to the public should be
made in consultation with a broad
range of parties with an interest in
public education, heritage tourism,
resource conservation, and the
particular place that would be
interpreted.
Decisions should be based on a broad
understanding of historical and cultural
context. This should include the rarity,
state of preservation, and current state
of knowledge about the resources.
It also should include knowledge of
the values placed on the resources by
living groups, and any associated
concerns about privacy, preservation,
interpretability, and appropriate uses of
the resources.
Any ascribed religious or cultural
values associated with the
archaeological resources should be fully
and carefully considered in making
decisions about appropriate public
visitation. Whether or how such
associated values are interpreted and
presented to the broader public should
be determined in consultation with
those who ascribe such significance to
the archaeological resources.
There should be an appropriate
consideration of protection and access.
Such consideration should include a
weighing of current or anticipated longterm threats, and adequate provision for
the maintenance and sustainability of
any archaeological resources that are
used for tourism or other educational
purposes.
—Responsible public interpretation for
education or tourism includes current
scholarship. Facts and findings from
the archaeological work should be
integrated into the presented story to
help bring the past and investigation
to life for the general public.
Scholarship includes sufficient and
accurate professional research as well as
other sources of knowledge, such as
relevant oral histories and traditional
knowledge, necessary to support
responsible archaeological heritage
tourism. The ability of a vocational
archaeologist to contribute to this
endeavor should not be overlooked.
There needs to be reliable and
accurate information about the
resources in order to present the
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relevant facts and tell a compelling
story.
Archaeological properties as
interpreted today are the end results of
physical and cultural processes in
operation over long periods of time.
Heritage tourists will benefit from an
understanding of the process of
creation, discovery, and interpretation.
Public interpretation for heritage
tourism should be germane to the
particular archaeological resource as
well as broader educational goals.
Information should illuminate not only
the specific archaeological site and its
remains but also past lifeways, cultural
practices, and development patterns
that they illustrate.
Archaeological properties used for
heritage tourism should also, as
practicable, provide a context that helps
visitors appreciate a site’s value to any
cultural and lineal descendants living
today.
—Archaeological properties or
resources that are made part of public
education efforts and/or heritage
tourism projects are supportable and
sustainable through professional,
adequately funded, and welldeveloped and executed management
programs.
A broad range of governmental and
non-governmental organizations can
and should participate in decisions
about the uses of archaeological
resources for public education and
heritage tourism purposes, to ensure
these projects combine excellent
scholarship, responsible stewardship,
and sustainable development and
management.
Governmental entities, nongovernmental organizations, private
non-profit, and business enterprises that
control archaeological resources should
look for ways to include archaeological
interpretation and public access where
appropriate as part of mitigation
programs (such as those negotiated
through Section 106 of the National
Historic Preservation Act).
In some cases, publicly owned
archaeological properties and remains
may best be protected and managed
through public interpretation and
controlled public access. Archaeological
properties with active non-managed
visitation that are receiving unmitigated
impacts because of that visitation
should be considered for more formal
public interpretation and/or control of
public access.
With adequate professional
supervision and support, members of
the public, non-professional volunteers,
and cultural and lineal descendants can
all play a significant role in
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‘‘participatory archaeology’’ at certain
sites. Such programs may be an
appropriate use of archaeological
resources for heritage tourism and
education. Both the appropriateness of
excavation in the first place, as well as
future stewardship of the archaeological
site and resulting collections, needs to
be determined prior to it being
excavated as a part of a heritage tourism
or public education program.
Select references and resources on
heritage tourism
(1) Government Sources
—NPS ‘‘Discover Archaeology,’’ ‘‘Visit
Archaeology,’’ and ‘‘Archaeology in
the Parks’’; (https://www.nps.gov/
archeology/PUBLIC/discover.htm);
(https://www.nps.gov/history/
archeology/visit/index.htm); (https://
www.historians.org/perspectives/
issues/2000/000l/000lpub1.cfm).
—USDA Forest Service ‘‘Passport in
Time Program’’ and ‘‘Heritage
Opportunity Spectrum for Tourism
(HOST) Project’’; (https://
www.passportintime.com/); (https://
www.fs.fed.us/recreation/programs/
heritage/heritage_strategy.shtml).
—Bureau of Land Management
‘‘Adventures in the Past’’; (https://
www.blm.gov/heritage/adventures/).
—Preserve America; (https://
www.preserveamerica.gov).
—Advisory Council on Historic
Preservation ‘‘List of federal
government programs that support
heritage tourism’’; (https://
www.achp.gov/heritagetourismassist.html); (https://www.grants.gov).
(2) State and Private Sources
—Arkansas Archaeological Survey
‘‘Archaeological Parks in the U. S.’’;
(https://www.uark.edu/misc/aras/).
—Society for American Archaeology
‘‘Archaeology for the Public’’ and
SAA Archaeological Record, Special
Issue on ‘‘Archaeology and Heritage
Tourism’’ (vol. 5, no. 3, May 2005):
(https://www.saa.org/Public/home/
home.html); (https://www.saa.org/
publications/theSAAarchRec/
may05.pdf).
—Society for Historical Archaeology
‘‘Unlocking the Past’’ and ‘‘Exploring
Historical Archaeology’’: (https://
www.sha.org/unlockingthepast/
index.htm); (https://www.sha.org/
EHA/splash.htm).
—National Trust for Historic
Preservation ‘‘Cultural Heritage
Tourism’’ and ‘‘Share Your Heritage’’;
(https://www.preservationnation.org/
issues/heritage-tourism/); (https://
www.culturalheritagetourism.org/
resources/shareYourHeritage.htm).
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—National Geographic Society
‘‘Geotourism Principles’’; (https://
www.nationalgeographic.com/travel/
sustainable/aboutgeotourism.html).
—American Association of
Museums;(https://www.aam-us.org/).
(3) International Organizations
—International Council on Monuments
and Sites ‘‘Ename Charter for the
Interpretation of Cultural Heritage
Sites’’;
(https://www.enamecharter.org/).
—UNESCO: Cultural Tourism
portal;(https://portal.unesco.org/
culture/en/ev.php-URLID=11408&
URLDO=DOTOPIC&URLSECTION=
201.html).
Authority: 16 U.S.C. 470j.
Dated: June 4, 2008.
John N. Fowler,
Executive Director.
[FR Doc. E8–13004 Filed 6–11–08; 8:45 am]
BILLING CODE 4310–K6–M
DEPARTMENT OF AGRICULTURE
Forest Service
Goose Creek Watershed Livestock
Grazing Analysis on the Tongue
Ranger District, Bighorn National
Forest, Sheridan and Johnson
Counties, WY
Forest Service, USDA.
Notice of intent to prepare an
environmental impact statement.
AGENCY:
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ACTION:
SUMMARY: The USDA, Forest Service,
will prepare an environmental impact
statement (EIS) to update range
management planning on seven (7)
cattle and horse allotments in the Goose
Creek area, which will result in
development of new allotment
management plans (AMPs). The agency
gives notice of the full environmental
analysis and decision-making process
that will occur on the proposal so that
interested and affected people may
become aware of how they may
participate in the process and contribute
to the final decision.
DATES: Comments and input regarding
the proposal were requested from the
public, other groups and agencies, via a
legal notice published in the Casper
Star-Tribune November 7, 2007.
Additional comments may be made at
the addresses below, and would be most
helpful if submitted within thirty days
of the publication of this notice. Based
on past actions of this type, the
Responsible Official has determined
that an environmental impact statement
will be prepared for this project. The
draft environmental impact statement is
VerDate Aug<31>2005
21:47 Jun 11, 2008
Jkt 214001
expected March 2009, and the final
environmental impact statement is
expected June 2009.
ADDRESSES: Send written comments to
Clarke McClung, Tongue District
Ranger, 2013 Eastside Second Street,
Sheridan, Wyoming 82801.
FOR FURTHER INFORMATION CONTACT:
Laurie Walters-Clark, Interdisciplinary
Team Leader, Bighorn National Forest,
phone (307) 674–2600.
SUPPLEMENTARY INFORMATION: The
allotments are located approximately 25
miles by road, west of Sheridan,
Wyoming in the Big Goose drainage.
National Forest System lands within the
Bighorn National Forest will be
considered in the proposal. The purpose
of the analysis is to determine if
livestock grazing will continue on the
analysis area. If the decision is to
continue livestock grazing, then
updated management strategies
outlining how livestock will be grazed
will be developed to assure
implementation of the 2005 Revised
Bighorn National Forest Land and
Resource Management Plan (Forest
Plan) management direction. The
analysis will consider actions that
continue to improve trends in
vegetation, watershed conditions, and
ecological sustainability relative to
livestock grazing within the allotments.
Management actions are proposed to be
implemented beginning in the year
2011.
The Bighorn Forest Plan identifies
livestock grazing as an appropriate use
and makes initial determinations for
land scapable and suitable for grazing
by domestic livestock. The seven
allotments involved are: Big Goose,
Little Goose, Rapid Creek, Little Goose
Canyon, Walker Prairie, Tourist, and
Stull Lakes.
Purpose and Need for Action: The
purpose of this project is to determine
if livestock grazing will continue to be
authorized on the seven allotments, and
if it is to continue, how to best utilize
adaptive management strategies to
maintain or achieve desired conditions
and meet forest plan objectives.
Livestock grazing is currently occurring
on most of the allotments under existing
allotment management plans (AMPs)
and through direction provided in the
Annual Operating Instructions (AOI).
Portions of the Stull Lakes allotment are
vacant; however, livestock grazing is
occurring on the Antler Creek portion.
Continuation of livestock grazing will
require the review of existing
management strategies and, if necessary,
updating them to implement forest plan
direction and meet Section 504 of
Public Law 104–19 (Rescission Bill,
PO 00000
Frm 00007
Fmt 4703
Sfmt 4703
33393
signed 7/27/95). The results of this
analysis may require modifying term
grazing permits. Modification will be
documented in updated AMPs for the
allotments.
Proposed Action: The proposed action
is to continue livestock grazing using
adaptive management strategies to meet
or move toward Forest Plan and
allotment-specific desired conditions.
This includes changing livestock
management strategies and construction
of additional improvements (fences and
water developments).
Possible Alternatives: Two additional
alternatives have been identified to date:
(1) No action; remove livestock grazing
from these allotments, and (2) No
change; continuance of current
management strategies.
Responsible Official: Clarke McClung,
District Ranger, Tongue Ranger District,
Bighorn National Forest, 2013 Eastside
2nd Street, Sheridan, Wyoming 82801.
Nature of Decision To Be Made: The
Responsible Official will consider the
results of the analysis and its finding
and then document the final decision in
a Record of Decision (ROD). The
decision will determine whether or not
to authorize livestock grazing on all,
part, or none of the allotments, and if so,
what adaptive management design
criteria, adaptive options, and
monitoring will be implemented so as to
meet or move toward the desired
conditions in the defined timeframe.
Scoping Process: Formal scoping for
this project occurred in November 2007.
Early Notice of Importance of Public
Participation in Subsequent
Environmental Review: A draft
environmental impact statement will be
prepared for comment. The comment
period on the draft environmental
impact statement will be 45-days from
the date the Environmental Protection
Agency publishes the notice of
availability in the Federal Register.
The Forest Service believes, at this
early stage, it is important to give
reviewers notice of several court rulings
related to public participation in the
environmental review process. First,
reviewers of draft environmental impact
statements must structure their
participation in the environmental
review of the proposal so that it is
meaningful and alerts an agency to the
reviewer’s position and contentions.
Vermont Yankee Nuclear Power Corp. v.
NRDC, 435 U.S. 519, 553 (1978). Also,
environmental objections that could be
raised at the draft environmental impact
statement stage but that are not raised
until after completion of the final
environmental impact statement may be
waived or dismissed by the courts. City
of Angoon v. Hodel, 803 F.2d 1016,
E:\FR\FM\12JNN1.SGM
12JNN1
]]>Agencies
[Federal Register Volume 73, Number 114 (Thursday, June 12, 2008)]
[Notices]
[Pages 33389-33393]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: E8-13004]
-----------------------------------------------------------------------
ADVISORY COUNCIL ON HISTORIC PRESERVATION
Request for Comments on Proposed Policy Statement on Archaeology
and Heritage Tourism
AGENCY: Advisory Council on Historic Preservation.
ACTION: Notice of Intent To Adopt a Policy Statement on Archaeology and
Heritage Tourism.
-----------------------------------------------------------------------
SUMMARY: In 2003 the Chairman of the Advisory Council on Historic
Preservation (ACHP) appointed a Task Force on Archaeology to identify
archaeological issues that merited the ACHP's attention. One issue
identified was the need to better encourage responsible use of
archaeological resources for public benefit, including education
programs and heritage tourism. The Task Force has developed a draft
policy statement, along with guidance, entitled ``Using Archaeological
Resources for Public Benefit, including Education and Heritage
Tourism,'' and now seeks public comments on it.
DATES: Submit comments on or before July 14, 2008.
ADDRESSES: Address all comments concerning this draft policy statement
and guidance to Dr. Tom McCulloch, Office of Federal Agency Programs,
Advisory Council on Historic Preservation, 1100 Pennsylvania Avenue,
NW., Suite 803, Washington, DC 20004. Fax (202) 606-8647. You may
submit electronic comments to: archaeology@achp.gov. Please note that
all comments submitted to the ACHP will become part of the public
record.
FOR FURTHER INFORMATION CONTACT: Dr. Tom McCulloch, (202) 606-8554,
archaeology@achp.gov.
SUPPLEMENTARY INFORMATION: The Advisory Council on Historic
Preservation (ACHP) is an independent federal agency that promotes the
preservation, enhancement, and productive use of our nation's historic
resources, and advises the President and Congress on national historic
preservation policy.
The current draft policy statement and guidance is the product of a
Task Force subcommittee that included ACHP members and their expert
staff, Federal agency officials knowledgeable
[[Page 33390]]
about historic preservation and tourism, the ACHP's tribal member, the
ACHP's Native American Advisory Group, representatives of the National
Conference of State Historic Preservation Officers, and the National
Association of Tribal Historic Preservation Officers. Formal discussion
sessions were held at the national meetings of the Society for
Historical Archaeology in Williamsburg, Virginia, and the Society for
American Archaeology in Austin, Texas. The subcommittee determined that
a policy statement with some accompanying guidance was the appropriate
vehicle to promulgate the ACHP's position on the need for a more
prominent role for archaeology in heritage tourism and education. The
Subcommittee met four times to develop an initial draft of these
documents, which were then presented to the full Archaeology Task Force
where they were refined into the present document.
At its most recent meeting on April 18, 2008, the Task Force
members agreed to place before the full ACHP membership this latest
draft of the policy for their review and comment. A full copy of the
draft can be found at the end of this notice. The ACHP membership also
agreed with the Task Force's plans to circulate the draft policy and
guidance for public comment in this Federal Register notice, and post
it on the ACHP's Web site. After review of comments received, the Chair
of the Task Force plans to bring the policy and guidance before the
full ACHP membership for adoption at its August 15, 2008 quarterly
meeting.
Several particular issues were explored in developing this
statement and guidance, that we would specifically appreciate comments
on, including:
(1) Use of the policy statement. The policy is intended to help
ACHP staff, federal agencies, State and Tribal Historic Preservation
Officers, local communities with archaeological assets (like Preserve
America and Main Street communities), tourism industry professionals,
and others when determining whether and how to use archaeology to help
instill a greater appreciation and understanding of the American past,
and when making decisions about incorporating archaeology and
archaeological resources into heritage tourism projects and programs.
(2) Balancing use of archaeological properties in tourism and
education with privacy concerns. This issue is addressed in Principle 2
of the draft policy statement. Guidance for this principle says that
many archaeological sites are valued by cultural and lineal descendants
for religious or cultural reasons and would prefer not to open them to
the general public. The guidance goes on to say that religious or
cultural values associated with the archaeological resources should be
considered in making decisions about appropriate public visitation.
(3) Consultation with others in making use decisions. Decisions
about appropriate use should be made in consultation with those who
ascribe such significance to the archaeological resources, in addition
to those with an interest in public education, heritage tourism, and
resource conservation.
(4) Management and sustainability needs. Use of archaeological
resources in heritage tourism and education requires adequate personnel
and financial resources for success. Guidance for this principle
focuses on the need to consider a wide range of issues that include
resource protection, access, current and long-term threats, and the
requirement for site maintenance and sustainability.
Text of the Draft Policy Statement and Guidance
The following is the text of the draft policy statement and
guidance:
ACHP Policy Statement: Using Archaeological Resources for Public
Benefit, Including Education and Heritage Tourism
Introduction
The National Historic Preservation Act of 1966 (NHPA) aims among
other things ``to insure future generations a genuine opportunity to
appreciate and enjoy the rich heritage of our Nation.'' 16 U.S.C.
470(b)(5). The NHPA goes on to state that ``it shall be the policy of
the Federal Government, in cooperation with other nations and in
partnership with the States, local governments, Indian tribes, and
private organizations and individuals to--(1) use measures, including
financial and technical assistance, to foster conditions under which
our modern society and our prehistoric and historic resources can exist
in productive harmony and fulfill the social, economic, and other
requirements of present and future generations.'' 16 U.S.C. 470-1.
Executive Order 13287, ``Preserve America,'' signed by President
George W. Bush on March 3, 2003, builds on this mandate, stating that
``it is the policy of the Federal Government to provide leadership in
preserving America's heritage by actively advancing the protection,
enhancement, and contemporary use of the historic properties owned by
the Federal Government, and by promoting intergovernmental cooperation
and partnerships for the preservation and use of historic properties.''
Executive Order 13287 recognizes the importance of preserving ``the
unique cultural heritage of communities and of the Nation, and to
realize the economic benefit that these properties can provide.''
Archaeological Resources and Historic Properties
``Archaeological resources'' include archaeological properties
(sites), material collections derived from field investigation and
study of those sites, and related records and syntheses of those
studies. ``Archaeological properties'' are defined by the National Park
Service as ``the place or places where the remnants of a past culture
survive in a physical context that allows for the interpretation of
these remains.'' Archaeological properties may also be ``historic
properties,'' that is, properties listed, or eligible for listing, in
the National Register of Historic Places.
Archaeological resources have significant value and benefits as
heritage assets, and can contribute to public understanding and
appreciation of the past through heritage education programs and
heritage tourism initiatives at a local, statewide, or regional level.
As demonstrated in a public opinion poll conducted in 2000 by Harris
Interactive for the Society for American Archaeology, archaeological
resources and the archaeological research process hold particular
fascination and interest for many members of the public. The Harris
Poll found that most Americans ``support the goals and practice of
archaeology, endorse laws protecting archaeological sites and
artifacts, and think archaeology is important to today's society.''
Many of these same individuals are likely to be active heritage
tourists.
Heritage Tourism and Archaeology
Heritage tourism is defined in Executive Order 13287 as ``the
business and practice of attracting and accommodating visitors to a
place or area based especially on the unique or special aspects of that
locale's history, landscape, and culture.'' The National Trust for
Historic Preservation further defines cultural heritage tourism as
``travel to experience the places and activities that authentically
represent the stories and people of the past and present'' (Getting
Started: How to Succeed in Heritage Tourism, National Trust for
Historic Preservation, 1993).
[[Page 33391]]
The practice of archaeology, public appreciation of the stories
about the past to which archaeology can contribute, and public access
to interpreted sites and archaeological collections have long been
recognized internationally as subjects worthy of tourism development. A
number of popular tourism destinations in the United States, such as
Mesa Verde National Park or Jamestown Island, incorporate
archaeological resources. At other locations, engaging visitors to
actively participate in archaeological field work under controlled and
limited conditions may also be appropriate. Such ``participatory
archaeology'' can offer an excellent opportunity for educating a
segment of the public about archaeology and resource stewardship.
At the same time, it is also clear that legitimate issues arise
about tourism development and the visitor experience and their
potential impact on the archaeological record. Such issues may include
the adequacy of resource conservation, sustainability, and management;
the appropriateness of public access and associated site improvements
at a particular location; the cultural sensitivity of some remains as
well as their interpretation; and the economic viability of open sites
and necessary visitor facilities. Careful consideration of these issues
may conclude that it is appropriate to use archaeological collections
and results of archaeological research in heritage tourism, but not the
actual, physical, ``site.'' In such cases, other means of interpreting
and presenting the results of archaeological study should be
considered, including electronic ``virtual'' tours, exhibits, film,
offsite interpretation, and other methods.
Management and economic issues also need to be assessed in reaching
decisions about the viability and sustainability of archaeological
heritage tourism. Just because an archaeological site is opened and
presented to the public does not mean it will be visited or
appreciated. A sound and realistic business plan is necessary. Issues
to consider here include the potential market and audience for this
form of tourism; whether site development is an appropriate use of the
resources; the impact of a site's location and ownership on public
access; immediate and long-term financial and management needs; and the
ability and willingness of responsible parties to prepare and implement
necessary development, interpretive, and public use plans.
Principles
The following principles and accompanying guidance have been
adopted by the Advisory Council on Historic Preservation (ACHP) to
assist ACHP staff, federal agency decision-makers, and other parties
when determining whether and how to use archaeology to help instill a
greater appreciation and understanding of the American past, and when
making decisions about incorporating archaeology and archaeological
resources into heritage tourism projects and programs.
These principles and guidance will also be useful for State and
Tribal Historic Preservation Officers, local communities with
archaeological assets (such as Preserve America and Main Street
communities), tourism industry professionals, and businesses and not-
for-profit organizations involved in heritage development projects.
--The public interest in archaeological resources and their
interpretation makes them an excellent focus for heritage tourism and
related public education efforts.
--While some archaeological properties, or groups of properties in an
area, may be appropriate for public education programs or heritage
tourism development, others may not.
--Decisions about when, where, and how to interpret and present
archaeological properties and resources to the public should be made in
consultation with a broad range of parties with an interest in public
education, heritage tourism, resource conservation, and the particular
place that would be interpreted.
--Responsible public interpretation for education or tourism includes
current scholarship. Facts and findings from the archaeological work
should be integrated into the presented story to help bring the past
and its investigation to life for the general public.
--Archaeological properties or resources that are made part of public
education efforts and/or heritage tourism projects are supportable and
sustainable through professional, adequately funded, and well-developed
and executed management programs.
Guidance
--The public interest in archaeological resources and their
interpretation makes them an excellent focus for heritage tourism and
related public education efforts.
The Society for American Archaeology's public opinion poll has
demonstrated the strong public interest in and appreciation for
archaeological knowledge, archaeological properties and the materials
they contain, and the archaeological discovery process.
There is often even greater interest in the stories and methods of
interpretation about people, places, and events of the past that are
reconstructed as a result of archaeological research and
interpretation.
The science of archaeology can foster a greater understanding of
and appreciation for peoples and cultures of the past as well as the
traditions, events and places valued by living peoples today.
Tourism and public education programs can assist in mutual
understanding and respect between peoples and societies, and between
the present and the past.
--While some archaeological properties, or groups of properties in an
area, may be appropriate for public education programs or heritage
tourism development, others may not.
In making decisions about whether a given archaeological resource's
preservation and use is the best way to tell this story to the public,
the physical manifestations of the archaeological resources, and how
their physical features lend themselves to being viewed and understood
by members of the public, needs to be carefully considered.
Ascribed values associated with the archaeological resources,
including their value to cultural and lineal descendants as well as
particular segments of the interested public, may either support or be
in conflict with public access. The pros and cons of public uses need
to be considered in this light.
Archaeological properties and related collections are fragile and
non-renewable; many are valued by cultural and lineal descendants of
the site's creators for religious or cultural reasons, and would prefer
not to open them up to the general public. Some resources may be
physically inaccessible to the public, such as those located on a
military reservation or tribal lands. If present, and when properly
studied, archaeological elements of a standing historic property or the
location of a past historic event can add considerably to the
interpretation and appreciation of the property.
Among other factors, the presence or absence of fragile or
culturally sensitive remains, as well as the ability to manage
visitation, should be taken into account in reaching decisions about
appropriate uses for public education or tourism.
[[Page 33392]]
Where public access is inappropriate or difficult, or cannot be
effectively managed, alternative means of presenting archaeological
properties and information to the public may be desirable. Such
alternatives may include offsite interpretation and exhibits,
``virtual'' tours, and other methods.
--Decisions about when, where, and how to interpret and present
archaeological properties and resources to the public should be made in
consultation with a broad range of parties with an interest in public
education, heritage tourism, resource conservation, and the particular
place that would be interpreted.
Decisions should be based on a broad understanding of historical
and cultural context. This should include the rarity, state of
preservation, and current state of knowledge about the resources.
It also should include knowledge of the values placed on the
resources by living groups, and any associated concerns about privacy,
preservation, interpretability, and appropriate uses of the resources.
Any ascribed religious or cultural values associated with the
archaeological resources should be fully and carefully considered in
making decisions about appropriate public visitation. Whether or how
such associated values are interpreted and presented to the broader
public should be determined in consultation with those who ascribe such
significance to the archaeological resources.
There should be an appropriate consideration of protection and
access. Such consideration should include a weighing of current or
anticipated long-term threats, and adequate provision for the
maintenance and sustainability of any archaeological resources that are
used for tourism or other educational purposes.
--Responsible public interpretation for education or tourism includes
current scholarship. Facts and findings from the archaeological work
should be integrated into the presented story to help bring the past
and investigation to life for the general public.
Scholarship includes sufficient and accurate professional research
as well as other sources of knowledge, such as relevant oral histories
and traditional knowledge, necessary to support responsible
archaeological heritage tourism. The ability of a vocational
archaeologist to contribute to this endeavor should not be overlooked.
There needs to be reliable and accurate information about the
resources in order to present the relevant facts and tell a compelling
story.
Archaeological properties as interpreted today are the end results
of physical and cultural processes in operation over long periods of
time. Heritage tourists will benefit from an understanding of the
process of creation, discovery, and interpretation.
Public interpretation for heritage tourism should be germane to the
particular archaeological resource as well as broader educational
goals. Information should illuminate not only the specific
archaeological site and its remains but also past lifeways, cultural
practices, and development patterns that they illustrate.
Archaeological properties used for heritage tourism should also, as
practicable, provide a context that helps visitors appreciate a site's
value to any cultural and lineal descendants living today.
--Archaeological properties or resources that are made part of public
education efforts and/or heritage tourism projects are supportable and
sustainable through professional, adequately funded, and well-developed
and executed management programs.
A broad range of governmental and non-governmental organizations
can and should participate in decisions about the uses of
archaeological resources for public education and heritage tourism
purposes, to ensure these projects combine excellent scholarship,
responsible stewardship, and sustainable development and management.
Governmental entities, non-governmental organizations, private non-
profit, and business enterprises that control archaeological resources
should look for ways to include archaeological interpretation and
public access where appropriate as part of mitigation programs (such as
those negotiated through Section 106 of the National Historic
Preservation Act).
In some cases, publicly owned archaeological properties and remains
may best be protected and managed through public interpretation and
controlled public access. Archaeological properties with active non-
managed visitation that are receiving unmitigated impacts because of
that visitation should be considered for more formal public
interpretation and/or control of public access.
With adequate professional supervision and support, members of the
public, non-professional volunteers, and cultural and lineal
descendants can all play a significant role in ``participatory
archaeology'' at certain sites. Such programs may be an appropriate use
of archaeological resources for heritage tourism and education. Both
the appropriateness of excavation in the first place, as well as future
stewardship of the archaeological site and resulting collections, needs
to be determined prior to it being excavated as a part of a heritage
tourism or public education program.
Select references and resources on heritage tourism
(1) Government Sources
--NPS ``Discover Archaeology,'' ``Visit Archaeology,'' and
``Archaeology in the Parks''; (https://www.nps.gov/archeology/PUBLIC/
discover.htm); (https://www.nps.gov/history/archeology/visit/index.htm);
(https://www.historians.org/perspectives/issues/2000/000l/000lpub1.cfm).
--USDA Forest Service ``Passport in Time Program'' and ``Heritage
Opportunity Spectrum for Tourism (HOST) Project''; (https://
www.passportintime.com/); (https://www.fs.fed.us/recreation/programs/
heritage/heritage_strategy.shtml).
--Bureau of Land Management ``Adventures in the Past''; (https://
www.blm.gov/heritage/adventures/).
--Preserve America; (https://www.preserveamerica.gov).
--Advisory Council on Historic Preservation ``List of federal
government programs that support heritage tourism''; (https://
www.achp.gov/heritagetourism-assist.html); (https://www.grants.gov).
(2) State and Private Sources
--Arkansas Archaeological Survey ``Archaeological Parks in the U. S.'';
(https://www.uark.edu/misc/aras/).
--Society for American Archaeology ``Archaeology for the Public'' and
SAA Archaeological Record, Special Issue on ``Archaeology and Heritage
Tourism'' (vol. 5, no. 3, May 2005): (https://www.saa.org/Public/home/
home.html); (https://www.saa.org/publications/theSAAarchRec/may05.pdf).
--Society for Historical Archaeology ``Unlocking the Past'' and
``Exploring Historical Archaeology'': (https://www.sha.org/
unlockingthepast/index.htm); (https://www.sha.org/EHA/splash.htm).
--National Trust for Historic Preservation ``Cultural Heritage
Tourism'' and ``Share Your Heritage''; (https://
www.preservationnation.org/issues/heritage-tourism/); (https://
www.culturalheritagetourism.org/resources/shareYourHeritage.htm).
[[Page 33393]]
--National Geographic Society ``Geotourism Principles''; (https://
www.nationalgeographic.com/travel/sustainable/aboutgeotourism.html).
--American Association of Museums;(https://www.aam-us.org/).
(3) International Organizations
--International Council on Monuments and Sites ``Ename Charter for the
Interpretation of Cultural Heritage Sites''; (https://
www.enamecharter.org/).
--UNESCO: Cultural Tourism portal;(https://portal.unesco.org/culture/en/
ev.php-URLID=11408&URLDO=DOTOPIC&URLSECTION=201.html).
Authority: 16 U.S.C. 470j.
Dated: June 4, 2008.
John N. Fowler,
Executive Director.
[FR Doc. E8-13004 Filed 6-11-08; 8:45 am]
BILLING CODE 4310-K6-M
